il^p 



v^S) 



COMMUNICATION 

IN BEHALF OF 



VACATION &" NIGHT SCHOOLS 
RECREATION CENTERS 
POPULAR LECTURES 

JANUARY 9, 1905 



TO THE 



BOARD of EDUCATION 



GREATER NEW YORK 



BY 

THE NEW YORK ASSOCIATION 

FOR IMPROVING THE CONDITION 

OF THE POOR 

los EAST TWENTY-SECOND STREET 



For the information of all persons interested in The 
New York Association for Improving the Condition of the 
Poor, the following particulars are given : 

The Association was formally incorporated in December, 
1848, under '^ An Act for the incorporation of benevolent, 
charitable, scientific, and missionary societies," Chapter 319 
of the Laws of New York, passed April 12, 1848, but the 
annals show that the society itself came into existence five 
years previously. 

The name and title of the institution is known in the law 
as ''The New York Association for Improving the Condition 
of the Poor." 

The particular business and objects of the Association 
are the elevation of the physical and moral condition of the 
poor, and, so far as is compatible with these objects, the 
relief of their necessities. 



COMMUNICATION 



IN BEHALF OF 



VACATION & NIGHT SCHOOLS 
RECREATION CENTERS 
& POPULAR LECTURES 

JANUARY 9, 1905 



TO THE 



BOARD of EDUCATION 



GREATER NEW YORK 



BY 

THE NEW YORK ASSOCIATION 

FOR IMPROVING THE CONDITION 

OF THE POOR 

105 EAST TWENTY-SECOND STREET 



Gift 
Author 
30Mr'05 




c 



^^ 



.t\| s H S 



PREFACE 



During Christmas week, 1903, the New York daily 
newspapers printed in various forms the announcement 
that, in order to keep within its appropriation, the Board 
of Education would be compelled to discontinue Popular 
Lectures, Recreation Centres, Evening Schools and Va- 
cation Schools. A storm of protest followed — the special 
features were continued without serious curtailment. 

Grave educational policies were involved. Impor- 
tant achievements of a decade were threatened. Yet for 
the most part discussion was directed to personalities and 
side issues, rather than to the untold injury and loss that 
would result from a discontinuance of those features of 
the school system specially benefiting the children and 
parents of our congested districts. 

The New York Association for Improving the Con- 
dition of the Poor — which supported the first Vacation 
School in 1894, five in 1895 and 1896, and ten in 1897 — 
felt that it was not enough to postpone the threatened 
curtailment. The principle should be established that no 
exigency could justify such curtailment. Just w^here re- 
trenchment should be begun was for others to determine. 
The Association undertook only to collect facts enabling 
it to prove that such retrenchment should not be at the 
expense of Popular Lectures, Recreation Centres, Even- 
ing Schools and Vacation Schools. The attempt to ob- 
tain these facts from existing official docum.ents was fu- 
tile. The question naturally arose. Would adequate re- 
ports reveal other possibilities of economy and win addi- 
tional appropriations? 

The General Agent of the Association, William H. 
Allen, enlisted the co-operation of the following experts : 
Frederick A. Cleveland, Professor of Finance at the New 
York University; author of The Growth of Democracy 



4 PREFACE 

IN THE United States, Funds and Their Uses, the Bank 
AND THE Treasury; editor of Business Education in Ac- 
countancy; Secretary of the National Municipal League's 
Committee on Uniform Accounting, and Chairman of a 
similar Committee of the American Economic Associa- 
tion : William R. Patterson, at that time Registrar of the 
New York Tenement House Department, formerly State 
Statistician of Iowa, and now Professor of Statistics at 
the University of Iowa, having charge of the State Cen- 
sus : Frank Tucker, formerly General Agent of the Asso- 
ciation for Improving the Condition of the Poor, now 
Vice-President of the Provident Loan Association, 

The findings of these experts were presented to the 
late President of the Board of Education, Henry A. 
Rogers, who expressed great interest and referred them 
to the head of the Bureau of Audits and Accounts. 
Attempt was made also to interest the City Superintend- 
ent of Schools, William H. Maxwell. The summer passed 
with no action. In the autumn the necessity for retrench- 
ment caused the so-called extra features of the educa- 
tional system to be again threatened, but the storm of 
protest was less vigorous. The public was becoming ac- 
customed to the theory that Recreation Centres, Popular 
Lectures, Evening Schools and Vacation Schools were 
the weakest link in the system. 

The Association, however, renewed its efforts and 
obtained a hearing. Several conferences were held with 
various members of the Board of Education and with 
citizens interested in school progress, thus leading to a 
formal communication from the A. I. C. P. to the Board 
of Education. Mr. Cutting's letter was read to the Board 
of Education at its monthly meeting in January, and the 
whole subject was referred to a Committee of Five to be 
appointed by the President, of which he was to be a 
member. 



PREFACE S 

The Committee, announced February 15, is consti- 
tuted as follows: Samuel M. Dix, Chairman, Richmond; 
James A. Renwick, Queens; Frederick W. Jackson, 
Bronx; Felix M. Warburg, Manhattan; Henry N. Tifft, 
President. 

The essence of the letter was this : Establish units 
of comparison — standards of service rendered — and group 
about them expense items. 

Added force is given to the recommendation by re- 
cent public announcement that the methods within the 
Department of Supplies are such that a few minor 
changes within that Department saved over $200,000; 
that two hundred, perhaps one thousand tons of coal 
could be stolen w^ithout being missed; that it was possible 
for twenty-eight to fifty per cent, of the school children 
to be from two to six years out of place in the system, 
w^ithout the fact being revealed to the Board of Superin- 
tendents or to the, Board of Education; that the Superin- 
tendent of Schools gave out to the world statements re- 
garding hungry school children, founded upon the esti- 
mates of a friend, which estimates in turn were based on 
three guesses as to the number of evictions due to dis- 
tress, the number of unemployed and the general poverty 
in this city. 

The Association submits these communications not 
for the purpose of urging retrenchment, but rather for 
the purpose of suggesting business methods that will 
demonstrate to taxpayer and official alike the wisdom of 
more liberal appropriations to the Board for general edu- 
cational purposes, and more particularly for Popular Lec- 
tures, Evening Schools, Vacation Schools and Recreation 
Centres. 

New York, Februar}^ 15, 1905. 




THE NEW YORK ASSOCIATION FOR 

IMPROVmG THE CONDITION 

OF THE POOR 

105 EAST 22D STREET 



NEW YORK, January 9th, 1905. 

To the BOARD OF EDUCATION, 

Park (Avenue and 59th Streets 

Gentlemen : — 

Since the years 1894-1897, when this Association 
provided the funds necessary to maintain the first Vaca- 
tion Schools, we have watched gratefully the develop- 
ment of those features of our Metropolitan School Sys- 
tem that benefit especially the tenement child and his 
parents. 

Our long experience leads us to believe unqualifiedly 
in the vast social and educational value of the Vacation 
School, the Recreation Centre, the Night School and the 
Popular Lecture. When, therefore, it was last year de- 
cided to discontinue these activities, we at once set about 
collecting the facts that would enable us effectively to 
support your Board in its demand for additional appro- 
priations. 

We searched the files of official documents published 
by your Board in order to ascertain the cost per pupil of 
the various features of the school system. We aimed to 
discover a standard of administrative economy by the aid 
of v/hich to compare subject with subject, school with 



THE ASSOCIATION S LETTER ^ 

school, department with department, month with month, 
year with year. Having discovered such a standard we 
proposed to group together those schools whose outlay 
for fuel, supplies, supervision and special instruction, ex- 
ceeded the standard per unit established by your Board. 
We became convinced, and we remain convinced, that 
such an investigation would reveal the possibility and 
emphasize the expediency of continuing the Recreation 
Centres, Vacation and Night Schools and Popular Lec- 
tures. 

Not being able to elicit the facts upon which to base 
such a standard as we sought, we consulted an eminent 
expert, Mr. F. A. Cleveland, appointed Chairman of the 
National Committee on Uniform Accounting for the 
American Economic Association, by its President, the 
celebrated authority on Finance, Prof. E. R. A. Seligman. 
After making a careful examination of the Annual State- 
ments of your Board and of your Superintendent, Mr. 
Cleveland reported that the facts Avere lacking that would 
disclose the cost, per unit, of the results obtained. He 
went further, and suggested that the remedy would seem 
to be the adoption of that principle of accounting now 
universally followed by the best managed corporations; 
namely, the principle of grouping all expense items 
around units of results obtained. 

The Department of Education has at present a Board 
of City Superintendents, which proposes educational 
policies and urges expansion. It has also a Department 
of Audit, which records expenditure and keeps it within 
the total appropriated by the Board of Aldermen and 
alloted by your Board. There is, however, no effective 
reciprocal relation between these two departments. 
There is no regular, systematic and accessible record of 
results obtained from specific expenditures. There is no 



8 THE association's LETTER 

summarized classification of the expense involved in each 
department for each policy pursued, as is now regarded 
as indispensible in banks, railways, insurance companies, 
and important industrial and commercial enterprises. 

That which is found profitable in the business world, 
is demonstrably practical in the administration of a 
school fund exceeding twenty millions per year. 

If your application of usual business methods in the 
single Department of Supplies has effected within three 
months a saving of over $200,000, what savings may your 
Board not hope to accomplish, and how vastly may you 
not hope to increase the efficiency of the school system, 
by extending those methods to every department under 
your care? 

A method automatically correlating your administra- 
tive with your educational records, would continually and 
instantly disclose the weakest spots in the system you 
are seeking to make strong, the least profitable of the 
expenditures you are seeking to render remunerative, as 
well as the first signs of the waste and duplication that 
you are seeking to prevent. 

Such a method could be framed and put into opera- 
tion at an initial cost far less than $10,000, and after the 
first year would be less expensive than the methods now 
in use. 

It is important, we believe, that your Board should 
be able at any moment to defend by tabular statements 
the educational value and the cost of any and all of your 
educational policies. Such statements ought to be sim- 
ple, clear, and readily available to the press, to public 
officials, and to private organizations and individuals in- 
terested in the work of your Board, and ready to defend 
its curriculum and to arouse public sentiment when the 
occasion demands. 



THE ASSOCIATION S LETTER 9 

The need for such information as we have described 
has become clearer year by year. To meet this need, 
your Superintendent of Schools has in special cases un- 
dertaken, more and more, the task of correlating your 
educational and administrative records. In his desire to 
serve your Board and the public, he has (in Mr. Cleve- 
land's phrase) '' attempted to report conclusions and to 
exhibit data pertaining to subjects entirely outside of the 
scope of his official duties and responsibilities." It is 
practically he who reports to the Mayor and the public — 
and not your Board, who are primarily responsible for 
the efficiency of the schools. 

It is to provide your Board with independent facili- 
ties for obtaining information that we urge the adoption 
of a system that will permit and even foster an accurate, 
minute and comprehensive comparison of results with 
cost per head, of cost per head with results. 

We believe that this course will result in such econo- 
mies as must justify greatly increased expenditures for 
Vacation and Night Schools, for Recreation Centres, and 
for Free Popular Lectures. 

In the hope that our proposal may receive favorable 
consideration at your hands, 

I have the honor to be, Gentlemen, 

Very truly yours, 

R. Fulton Cutting. 

Presiaent N* K Association for Improving 
the Condition of the Voor. 



NEW YORK ASSOCIATION FOR IMPROVING 
THE CONDITION OF THE POOR, 

i05 East 22d Sired, New York City. 

Gentlemen : — 

Complying with your request for opinion as to the 
administrative and instructional value of the '' Fifth An- 
nual Report of the Department of Education '' (for 1902) 
and of the '' Fifth Annual Report of the City Superin- 
tendent of Schools '' (for 1903), I beg to submit the fol- 
lowing : 

Preliminary Observations 

Before discussing critically the reports themselves, 
it is to be noted that no access has been had to the books 
and records of the Board of Education from which these 
reports were drawn, and no access was had to the books 
and records of the Comptroller of the City of New York, 
where the treasury accounts and records of school funds 
are kept. The opinion herein expressed applies only to 
the reports themselves. 

The bases for the criticisms herein offered are found 
(i) in the Law (i.e., the constitution and statutes of the 
State of New York, and the charter of the City of New 
York, which provides for the organization of schools, the 
care and distribution of funds, the preparation of budget- 
ary estimates for apportionment and appropriations, for 
the levying and collection of revenues, etc.), (2) in the 
evident purpose of making such reports, and (3) in cer- 
tain assumptions made as to vvhat the content of a report 



MR. CLEVELAND S REPORT 1 1 

should be as determined by legal requirements and the 
evident purpose of the exhibit. 

The Purpose of Making Reports 

The evident administrative purpose of making and 
publishing a report of any department of municipal ser- 
vice is twofold: (i) To lay before 



Departmental 
Reports 



officers and administrative agents 
such well-digested information as 
will give to them the data for the 
exercise of sound discretion in the performance of their 
duties and for the protection of public welfare; (2) to 
bring before the public such records of service rendered 
by public officials and such summaries of administrative 
results as will inform them of the doings of the agents 
into whose hands the affairs of the city have been placed. 
Both of these purposes are within the duties of office, to 
the discharge of which an adequate report is essential. 

While the report of a subordinate officer wnthin a 
department (one having direction and control over a 
certain division of departmental work and whose duties 
are special within the administrative group of which the 
department is composed) is governed by the same gen- 
era! purposes, it is limited by the narrower scope of offi- 
cial duties. Such an officer cannot intelligently represent 
the work of the department. His 
report is not to the general govern- 
ment of the city, and should form no 
part of a report of the general gov- 
ernment to the citizens. His return is to the head of the 
department to which he belongs and within which his 
special duties lie. 

The purpose of a special report, as distinct from that 
of the report of a department, is to convey to those in 

:l,.6'C. 



Reports 
of Subordinates 



12 MR. CLEVELAND S REPORT 

charge of the department, and to whom the one making 
it is officially responsible, such detailed information and 
summaries of transactions as may serve as a guide ior 
administrative judgment within the department, and as 
a means of supplying the data from which certain por- 
tions of the report of the head of the department to the 
chief executive officer of the city may be drawn. From 
the man}^ special reports a general report of the work of 
a department may be compiled ; but a special report may 
also have a significance in itself that will warrant its 
separate publication. Whatever may be the reasons for 
its separate circulation, however, when so published it 
must be regarded as a document supplementary to the 
general report of the department and as containing de- 
tails in which the officers of administration and the public 
may be separately interested, but which could not be co-n- 
venientl}^ handled in the general publication. 

What a Published Report Should Contain 

The second criterion for judgment of the reports of 
the Board of Education and its Superintendent has refer- 
ence to content, or the character and completeness of the 
data exhibited. A general guide to content is found in 
the purpose of the report, and in the Law, in so far as this 
contains a prescription. Generally speaking, however, 
legal prescriptions proceed from a failure on the part of 
officials to properly perform their duties with respect to 
the demands of government for information and the 
claims of the public on their agents for a proper report 
of their doings. A report should exhibit in a w^ell-di- 
gested form all the data pertaining to the branch of ser- 
vice represented which will be of interest to the officers 
in control, or to the public. To apply this to the two re- 



Wliat the 
Superintendent's 

Report 
Shoifid Contain 



MR. CLEVELAND S REPORT 13 

ports in hand : The duties and responsibilities of the City 
Superintendent of Schools pertain to 
services rendered or to be rendered 
by the educational staff. He is the 
administrative head of public in- 
struction in the City of New York. 
He is not the head of the Depart- 
ment of Education — this position is occupied by the 
Board of Education. He does not direct the administra- 
tion of the Department of Supplies, nor is he responsible 
for Buildings and Grounds ; he has no control over the 
financial administration or financial records. iVny data 
that he may obtain which relates to these several sub- 
jects must come as a matter of voluntary/ inquiry and re- 
sponse; as to subjects outside of his province his report 
could not be official. As the head of public instruction 
what should an officer report to the Board of Education, 
and through the Board to the public? Evidently the con- 
tent of the report should be confined to the content of his 
powers and duties — a report of purely educational ser- 
vices rendered. 

The same standard as to content would require that 
the report made by the Department of Education to the 
chief executive officer of the city (the Mayor) be an en- 
tirely different one, both for the information of officers of 
administration and for the enlightenment of citizens and 
taxpayers. A published report from the Board, as the 
official head of the Department, 
should set forth in clear light and in 
readily intelligible form all the data 
of interest pertaining to the work of 
this entire branch or department of 
municipal activity. The following relations and condi- 
tions are fundamental : The Department of Education 



Vhat the 
Board^s Report 
Should Contain 



14 MR. CLEVELAND S REPORT 

has been organized and officered to render a special class 
of service ; to accomplish the ends of its creation the De- 
partment must be suitably equipped; as a means of em- 
ploying officers and providing equipment, funds are neces- 
sary. These fundamental facts lend public as well as 
administrative interest to three principal inquiries, an- 
swer to which should be contained in a published report, 
viz.: (i) What is the service rendered by the Depart- 
ment and by w^hat agents? (2) What is the equipment 
provided and in hand for rendering service? (3) What 
are the financial provisions made and the financial results 
of administration? 

An adequate report on the first subject suggested 
(service rendered) would require at least tw^o distinct 
exhibits, viz.: (i) A statement pertaining to the purely 
educational service rendered, the data for which should 
be made available to the Board through the report of the 
City Superintendent of Schools, and 
(2) a statement of administrative 
service, or that which is incidental 
to providing the agencies and equip- 
ment necessary to the rendering of the purely educational 
service. The former would include the services of super- 
vising and teaching staff; the second w^ould include the 
services of the Board of Education and of the several 
administrative bureaus or divisions organized under it — 
the Department of Supplies, the Division of Buildings 
and Grounds, etc. 

Data pertaining to the second subject of inquiry 
(equipment) are of interest only in so far as they may be 
correlated wath the purposes to which equipment is ap- 
plied. These purposes are: (i) Superintendence and 



Report 
Service Rendered 



Report 
Eqtupment .Used 



MR. CLEVELAND S REPORT 1 5 

instruction, and (2) general administration. In each of 
these relations three distinct classes 
of properties are in use, viz. : (a) 
Real estate, (b) buildings equip- 
ment, and (c) furniture, apparatus, 
etc. Again, the city has two distinct relations to real 
estate and buildings equipment — i. e., as owner and as 
lessee. These various related conditions give to the 
Board a basis for the classification of data, which may be 
amplified by sub-classification and comparison in such 
manner as to answer specific questions of public and ad- 
ministrative inquiry. 

As a means of properly understanding financial 
operations and results, both the public and those in ad- 
ministrative control would have a final statement and 
report showing (i) relations of 
economy, drawn from a comparison 
of income and expenses with service 
rendered, (2) relations of proprietor- 
ship, or the finances pertaining to 
property and equipment acquired and liabilities incurred, 
and (3) relations of fidelity of subordinate ofticers or 
agents as trustees or custodians. 

If the report of the City Superin- 



Report 

Financial Relations 

and Results 



Premises tendent of Schools contains all of 

Summarized the information that the public or 

officers of administration may de- 
mand pertaining to instruction rendered, and if the report 
of the Department of Education conveys the information 
desired on the main subjects of interest above set forth, 
then there can be no room for criticism as to content; in 
such case the only criticism that might be offered would 
go to the form or method of exposition ; the inquiry to be 
raised would be as to whether or not the data mio-ht not 



i6 MR. Cleveland's report 

have been set forth in such a way as to make the conclu- 
sions more clear and more readily intelligible to the 
reader. If, on the other hand, information as to any of 
these leading points is lacking, then assuming that the 
standard for judgment is accepted, criticism must be di- 
rected to the content of the reports as well as to their 
form and style. 

The Content of the ^^ Fifth Annual Report of the City 
Superintendent of Schools ^^ 

The '' Fifth Annual Report of the City Superintend- 
ent of Schools " is contained in the first one hundred and 
twenty-nine pages of the volume bearing that title. This 
report is supplemented and supported by exhibits con- 
taining reports of subordinates, which, together with a 
small amount of general information, make up the re- 
maining portion of a book of three hundred and fifty 
pages. This general arrangement of report and subsi- 
diary exhibits conforms to the usual method of presenta- 
tion. As to content, also, in so far as the attempt is to 
set out the data pertaining to the duties and activities of 
the office of the City Superintendent 
and of his subordinates, there is lit- 
tle else to suggest. There are three 
general subjects reported on, and 
these coincide with the three sub- 
jects concerning wdiich information is desired, viz.: (i) 
The edequacy of schools and departments of instruction 
to render service ; (2) the organization of the supervising 
and teaching staff; (3) the educational service rendered. 
Further data might have been introduced to give com- 
pleteness to summaries showing organization of super- 
vising and teaching staff, as well as summaries pertaining 



Principal 

Subjects 

Reported Oa 



Chief Criticism 
as to Content 



MR. CLEVELAND S REPORT 17 

to service rendered. This criticism refers especially to the 
lack of data pertaining to evening schools, vacation 
schools, recreation centers, playgrounds, special classes, 
etc. 

As to content, the chief criticism would be that the 
Superintendent has attempted to report conclusions, and 
to exhibit data pertaining to subjects entirely outside of 
the scope of his official duties and responsibilities. Refer- 
ence is here made to such exhibits as the following : " Ex- 
penditures for school purposes,'' pp. 120-3; "per capita 
cost of instruction,'' pp. 124-7; '' litigation and diminished 
appropriations," pp. 127-8; ''new buildings and equip- 
m^ent," pp. 23-31 ; etc. It is to be remembered that the 
Superintendent's report is to the 
Board of Education as the head of 
the Department in which he is an 
officer, and that the Board has better 
facilities for obtaining information pertaining to the 
financial administration of schools than has the Superin- 
tendent — in fact, the information exhibited to the Board 
by the Superintendent must first be obtained by him from 
the Board. The same criticism holds true with reference 
to exhibits of buildings and equipment; the information 
given comes second-hand. The Superintendent of Build- 
ings, and other officers entirely outside of the authority 
of the Superintendent — those responsible and directly 
subordinate to the Board of Education — are the ones 
from whom this information is to be obtained. There is 
no reason why the Superintendent may not make use of 
any data obtainable from reliable sources for the purpose 
of presenting the needs and activities of his own depart- 
ment, but the exhibits here referred to are not of this 
kind. They are in the nature of a presentation of facts 
as inform.ation to the Board and through the Board to 



i8 MR. Cleveland's report 

the Public. Even though the Board of Education might 
fail in its duty (to the general government and to the 
public) to make a proper exhibit of certain branches of 
its own work, there is no reason why the Superintendent 
should assume responsibilities which he cannot meet. 
Such unofficial information weakens his own report and 
at the same time tends to shift attention from the weak- 
ness of the report of the Board. 

The Repoft of the City Sifperintendent Considered from 
the Standpoint of Form 

Admitting excellence as to content in so far as the 
report deals with the functions and duties of the purely 
educational branch of the service, any attempt to review 
the form and method of exposition must be undertaken 
with considerable hesitation. In representing a view, 
therefore, reasons are given, and these reasons are offered 
as subjects for consideration. 

While the literary style of the report is such as to 
carry the attention of the reader, an attempt to analyze 
the context and to fix the data in the memory discovers 
the fact that its plan is not easy to trace. Applying prin- 
ciples of exposition, it may be said 
that the form does not give empha- 
sis to conclusions. Again, the use 
made of tables and statistical 
statements of general conclusions 
reached has not been such as to 
strike the eye ; these more usually follow rather than pre- 
cede the textual treatment. Any attempt made to sug- 
gest an outline or to restate the report might be open to 
quite as serious objection. But assuming for the sake of 
illustration that the three main subjects of administrative 
and popular interest are as above indicated; viz. : (i) the 



Outline Report 

Subjects of 

Principal Interest 



MR. CLEVELAND S REPORT 1 9 

adequacy of schools and departments of instruction to 
render service, (2) the organization of the supervising 
and teaching staff, and (3) the educational service ren- 
dered — then these might be m^ade the three main divis- 
ions of the report and all of the data might be organized 
accordingly. Attempting to reorganize the report along 
these lines, the following outline is submitted : 

I. ADEQUACY OF SCHOOLS AND DEPART- 
MENTS OF INSTRUCTION TO RENDER 
SERVICE. 

1. Number and location of schools and departments 

of instruction organized. 
(i) Number and classification, 19-22. 
(2) Consolidation of schools, 107-8. 

2. Prospective schools and departments of instruc- 

tion, 
(i) New buildings, 23-31. 
(2) Brooklyn training school, 48. 

3. Instruction needs not adequately provided for. 

(i) Sittings and register, 35. 

(2) Increasing demands compared with new 

schools. 
(a) Increase in average attendance, 35. 
(&) Growth in kindergartens, 40-41. 

(3) Need for special schools, 
(i) Training schools. 

(a) Brooklyn, 48. 

(b) Kindergarten training school, 49- 

50. 

(2) High schools. 

(a) Manual Training High School, 55. 

(3) Schools for defective children, 1 10-17. 



20 MR. CLEVELAND S REPORT 

4. Vacation schools, playgrounds, and recreation 

centers, 1 17-18. 

5. School libraries, 1 18-19. 

11. ORGANIZATION OF THE SUPERVISING AND 
TEACHING STAFF. 

1. General exhibit, 38. 

2. Supervising staff. 

(i) Organization. 

(a) Board of Superintendents, 16-18. 

(b) District Superintendents, 18-19. 

(2) Methods for increasing efficiency of staff. 

(a) Superintendents' conferences, 1 19-120. 

(b) Syllabus Committee, 70-72. 

(c) Teachers' Plan books, 108-110. 

3. Principals and teachers. 

(i) In elementary schools, 37-38. 
(2) Educational and service requirements, 
(i) Licensing, 42-49. 

(a) Training school teachers, 42. 

(b) High School teachers, 43. 

(c) Elementary schools. 

(i) Heads of departments, 43. 

(2) Teachers of graduating 

classes, 43. 

(3) Evening schools, 45. 

(d) Kindergartens, 44. 

(e) Special branches, 45. 

(f) Substitutes, 45. 

(g) Vacation schools and playgrounds, 

45. 
(2) Service recognition. 

(a) License for promotion, 43. 

(b) Permanent licenses, 46-47. 



MR. CLEVELAND S REPORT 21 

(3) Teaching methods. 

(a) Departmental system, 72-106. 

(i) Schools employing plan, 75-6. 

(2) Departmental work and teachers^ 

interest, 76-9. 

(3) Effect of departmental work on 

methods, 79-82. 

(4) Effect of departmental Avork on 

students^ interest, 82-89. 

(5) Effect of departmental teaching on 

students' work, 89-92. 

(6) Departmental plan and discipline, 

92-98. 

(7) Effect of departmental instruction 

on penmanship, 99-102. 

(8) Summary, 103-106. 

III. EDUCATIONAL SERVICE RENDERED. 

1. Courses of instruction offered. 

(i) High schools, 54-55. 

(2) Elementary schools, 62-72. 

(3) Manual branches, 64-65. 

(4) Electives, 65-66. 

(5) Special branches, 106. ^ 

2. School attendance. 

(i) Enrollment. 

(a) Net enrollment, 33. 

(b) Net enrollment and population, 33-34. 

(2) Average attendance, 52-53. 

(a) Increase, 52-53. 

(b) Increase in kindergartens, 40-41. 

(c) Distribution of pupils, 38-39. 
(i) Distribution by sexes, 39. 

(3) Part time pupils, 36-37. 



2 2 MR. CLEVELAND S REPORT 

3. Graduates. 

(i) Training schools, 48. 

(2) High schools, 51-52. 

(3) Elementary schools. 

(a) Average age of graduation, 41. 

Without offering the above as an outline for use, but 
simply for the purpose of discussion, it is urged that a 
plan which has in mind a definite answer to questions of 
prime administrative and popular interest should be 
adopted ; that in developing this plan the general statisti- 
cal tables and conclusions should first be presented; and 
that in the textual treatment and detailed statements 
these should be governed by ques- 



Pfinciples 
of Exposition 



tions of immediate interest at the 
time of making the report. In oppo- 
sition, it may be argued that a sub- 
ject may be best presented by putting the concrete first. 
This m.ight be true if the primary purpose v/ere to con- 
vince the reader as to the accuracy of the conclusions ; it 
might also be accepted as a principle of research. The 
purpose of a report, however, is to present conclusions 
and not to argue them ; to give confidence these may be 
supported by such details as may serve to illuminate the 
result. But aside from the academic reason 'there are 
several practical ones. A very small portion of those in- 
terested in the report care to master the details ; accept- 
ing the accuracy of statements, a general knowledge of 
results only is desired. This should be made the most 
readily accessible — if possible, capable of being taken in 
at a glance. A second practical reason is found in the 
fact that even a special feature may be better understood 
if looked at from the viewpoint of the relation of the spe- 



Statements of 
General Results 



MR. CLEVELAND S REPORT 23 

cial feature to the whole. A third reason is urged — that 
a statement of summaries and re- 
sults not only gives to the reader a 
working hypothesis as a basis for 
the investigation of details reported, 
but also forces a classification which will give greater 
clearness and consistence and better co-ordination to the 
textual and detailed discussion of the report itself. The 
same reasoning has led to the introduction of general 
tables and schedules at the beginning of a subject treated, 
when such devices may convey the general conclusion 
with greatest facility. 

The following exhibits are given not as substitutes 
for any that may already have been made, nor for use in 
making a report, but simply for illustration of the prin- 
ciples of exposition above outlined. The two first sched- 
ules relate to (A) Adequacy of Facilities for Rendering 
Service, and to the (B) Organization of Supervising and 
Teaching Staff. 

In the textual treatment given to these divisions of 
the report, following the tables, the several classes of 
schools and departments may be discussed and illumi- 
nated in the order adopted by the authorities as the basis 
for classification and tabular statement. Within each of 
the minor subjects so discussed may also be inserted any 
specific tables or data that may contribute to the presen- 
tation. 



24 



MR. CLEVELAND S REPORT 



EXHIBIT A. 

GENERAL EXHIBIT OF NUMBER AND LOCATION 
SCHOOLS AND DEPARTMENTS OF INSTRUCTION^ 



OF 



Borough 



Year 



1901 



1900 



1899 



Higher Instruction. 
Day Schools: 

Training Schools 

High Schools 

High School Departments, 
Evening Schools: 

High Schools 

High School Departments, 
Elementary Schools and 

Branches: 
Grammar Schools: 

Day 

Evening 

Kindergarten Classes 

Vacation School 

Recreation Centers 

Play Grounds 

Work Shops 

Nautical Schools 

Training Schools 



102 

33 

158 



146 



36 



33 

4 
17 



481 

68 

420 



48 



MR. CLEVELAND S REPORT 



25 



EXHIBIT B. 
ORGANIZATION FOR SUPERVISION OF INSTRUCTION. 





Year 




1903 

I 

8 

23 

I 
I 

I 


1902 


1901 


1900 


1899 


General Supervision: 

Head City Superintendent 




Associate Superintendents 




Division Superintendents 




Office Assistants 




Special Supervision: 

Superintendent Vacation Schools, etc 

Superintendent Evening Schools 

Superintendent Training Schools 




Office Assistants 




Principals: 

Training and High Schools: 

Manhattan 

The Bronx 




Brooklyn 




Queens 




Richmond 

Elementary Schools: 

Manhattan 

The Bronx 




Brooklyn 




Queens, . 




Richmond 

Office Assistants 




Other Supervising Officers: 

Number 




Office Assistants 




Total Officers 




Total Office Assistants 




Grand Total 









26 



MR. CLEVELAND S REPORT 



EXHIBIT B* 
TEACHING STAFF BY BOROUGHS. 



Schools of Higher Instruction : , . 
Training School: 

Manhattan 

Brooklyn 

Queens 

High Schools and Departments: 

Manhattan 

The Bronx 

Brooklyn 

Queens 

Richmond 

Elementary Schools and Branches 
Grammar Schools: 

Manhattan 

The Bronx 

Brooklyn 

Queens 

Richmond 

Kindergarten Classes: 

Manhattan 

The Bronx 

Brooklyn 

Queens 

Richmond 

Special Branches. 

Manhattan 

The Bronx 

Brooklyn 

Queens 

Richmond 

Nautical School 

Truant Schools 

Other Teaching Staff 

Total 



Year 



1903 1902 1901 1900 1899 



MR. CLEVELAND S REPORT 



27 



EXHIBIT B* 
TEACHING STAFF BY CLASSES AND SEXES- 



Schools of Higher Instruction: 

Training Schools, Male 

Female 

High Schools, Male 

Female 

Total, Male 

Female 

Elementary Schools: 

Grammar, Male 

Female 

Kindergarten, Male 

Female 

Special Branches, Male 

Female 

Truant, Male 

Female 

Nautical, Male 

Female 

Other Teachers, Male 

Female 

Total Elementary, Male 

Female 

Grand Total 



Year 



1903 1902 1901 1900 1899 



28 MR. Cleveland's report 

With regard to superintendence and instruction 
facts must now be sought in various widely separated 
parts of the Superintendent's report, as follows : In state- 
ments pertaining to the organization of the Board of 
Superintendents (pp. 16-18) ; in the 



Textual Treatment 
Special Topics 



exhibit of the organization of the 
District Superintendents and a 
statement of their assignments and 
duties (pp. 18-19) ; in the list of the Board of Special Ex- 
aminers (p. 10) ; in the list of special assignments for 
evening schools, recreation centers, etc. (p. 19) ; in the 
tabulated summaries and classified statements with ref- 
erence to teachers (pp. 32, 37, 38) ; etc., etc. Consolida- 
tion and correlation as suggested above would obviously 
facilitate a proper appreciation of any topic of special in- 
terest and eliminate whatever textual comment might be 
thought to be necessary to an understanding of those 
functions of the Department of Education that fall under 
the authority of the Superintendent. 

The third division, Educational Service Rendered, 
may also be introduced by a general tabular statement. 
Whatever the form of the table, it should give answer to 
the questions of administrative concern and popular in- 
quiry. In answering these questions, the facts and con- 
clusions should not only be set out in such a manner as to 
represent teaching service, but to 



Should Lay 
Foundation for 
Board's Report 



lay the foundation for such portions 
of the general report of the Board of 
Education as depend on the report 
of the Superintendent. The same 
purpose and necessity would determine the arrangement 
and classification of textual treatment, of detailed ex- 
hibits and of special summaries. 



Why Complete 

Showing Should 

Be Made 



MR. CLEVELAND S REPORT 29 

Some of the subjects of administrative and popular 
interest at the present time pertain to evening schools, 
special branches, vacation schools 
and recreation centers. To specific 
inquiries on points of current inter- . 
est special textual treatment and de- 
tailed exhibits may be given. But 
information on topics of special interest is only incidental 
to the report; its primary purpose is to enlighten the ad- 
ministration in the performance of duty and to enlighten 
the public concerning the doings of their corporate ser- 
vants. It is essential to both purposes that information 
be given on all branches of the service. Likewise it is to 
the advantage of the officer whose duty it is to make the 
report. For example : A subject that has not been made 
a matter of interest, but to which serious consideration 
may be given, is that of the private (so-called corporate) 
schools to which the city is giving large revenues each 
year. These contributions are supposed to rest on a 
pseudo-control. The administration and the public 
should have definite knowledge of the character of in- 
struction given and the educational results accomplished 
by these legatees under the Law as it at present stands. 
Should controversy arise at any time with respect to 
these, the officer whose duty it is to report such informa- 
tion might be justly condemned for withholding it or 
failing to make it accessible. 



Defective 
Character 
of Report 



30 MR. CLEVELAND S REPORT 

The '^ Fifth Annual Report of the Department of Edu- 
cation^^ — Its Form and Method of Presentation 

The '' Fifth Annual Report of the Department of Edu- 
cation '' to the chief executive officer of the city would 
seem to possess few features measuring up to any accept- 
able standard, either for the guid- 
ance of officers or for the informa- 
tion of the public. Nor can the gen- 
eral excellence of the exhibit made 
by the Superintendent of Schools be 
considered as an exonerating circumstance. It has al- 
ready been suggested that the report of the Superintend- 
ent of Schools cannot be a substitute for a report from 
the Board; that he does not report to the Mayor; that he 
cannot officially report on any matter that does not come 
within the range of his duties and activities; that the 
purely educational activities of the Department form only 
one part of one of the three general subjects of interest 
to be represented by the Board of Education to the 
Mayor. True, the detailed information from which the 
report of the Board of Education is to be drawn must be 
derived in considerable measure from the several respon- 
sible officers within the Department, and this informa- 
tion is obtained by the Board in the form of documents 
submitted, which may be appended for further illumina- 
tion. But admitting all this, the reproduction of these 
documents or subordinate reports cannot be considered 
as a proper method of reporting the activities of the De- 
partment as a whole. Aside from commanding reports 
from subordinates the Board has a duty to perform. 

The '' Fifth Annual Report of the Department of 
Education" contains four classes of material, viz.: (i) 
The signed report or letter of transmission; (2) a finan- 



MR. CLEVELAND S REPORT 3 1 

cial statement; (3) reports of subordinate officers, with 
property sche'dules; and (4) a directory of official mem- 
bers of the staff of superintendence and instruction. The 
signed report or letter of transmission occupies the first 
twenty-two pages. Of this all but one page is an excerpt 
from the report of the Superintendent of Schools, and 
this one page is made up of an excerpt from the Law. 
The second section, or the '' financial report," is pre- 
sented in one hundred and fifty-four pages. Following 
this are the signed reports, in haec verba, made by the 
Superintendent of School Supplies (forty pages), the 
Superintendent of Lectures (fifty- 



Analysis of 
Published Report 



four pages), the Superintendent of 
the Nautical School (ten pages) ; a 
statement of school sites (twenty 
pages); a list of officers and staff (twenty pages), and 
the school directory (thirty-six pages). In the whole 
volume, containing four hundred and twenty-one pages 
of printed matter, there does not seem to be any attempt 
to lay before the officers of the Department itself or be- 
fore the general officers and administrative agents of the 
city, such a digest of information as will give to them the 
data necessary for the exercise of sound discretion in the 
performance of their duty and for the protection of the 
general welfare ; nor does it bring to the public such rec- 
ord of service rendered by public officials and such sum- 
maries as will inform them of the doings of those agents 
into whose hands the educational affairs have been placed. 
The only part of the document which purports to come 
from the Board is that contained in the financial exhibit. 
Whatever may be the content of the volume, so far as it 
pertains to the subjects of principal public interest or 
administrative inquiry, the information given must first 
be searched out by the reader from the mass of spe- 



32 MR. CLEVELAND S REPORT 

cial and subordinate documents and detailed statements. 
We turn to the content or substance obtainable after 
this heterogeneous array has been analyzed and digested. 
Invoking as a standard for judgment that the Board in 
its official capacity as head of the Department has a 
duty to perform, and that this duty is to report to the 
executive officers of the city as well as to the public all 
the data pertaining to the work of this branch of munici- 
pal activity which may be of interest to either, the analy- 
sis is proceeded with. 

Content of the Report as to Service Rendered 

Pertaining to service rendered, such information as 
is contained in the report of the Department is in the first 
section. From page 8 may be drawn the following sum- 
mary : 

Number of schools under jurisdiction of Board. . 512 
Number of teachers (exclusive of teachers of 
special branches, directors and superintend- 
ents) 11,741 

Total number of pupils on register in elementary 

schools 431,491 

Average daily attendance 405,925 

Number of high schools and training schools. ... 12 

High school departments in the Borough of 

Queens 6 

High school departments in the Borough of 

Richmond 3 

Total number of teachers (high school) 680 

Average attendance I4,590 

Number of corporate schools and societies (Man- 
hattan) 17 

Number of corporate schools and societies 

(Brooklyn) 11 



MR. CLEVELAND S REPORT 



33 



Total corporate schools and societies 28 

Number of teachers in corporate schools 560 

Number of pupils in corporate schools 19,829 

This summary is not presented (as is shown above) in 
tabular form and is the only one given of educational ser- 
vice rendered in high schools, training schools, elemen- 
tary schools and other schools under the jurisdiction of 
the Board. No separate summaries are given pertaining 
to the several classes of schools. The detailed exhibits 
which follow contain nothing but schedules of registra- 
tion and average attendance, and in this the classification 
is by individual schools and boroughs. To shovv^ the 
character of the exhibit, the following excerpt is given : 



PubHc 




Average 


Public 




Average 


School 


Register 


Attend- 


School 


Register 


Attend- 


Depart- 


July 31, 


ance for 


Depart- 


July 31- 


ance for 


ment 


1902 


year 


ment 


1902 


year 


56 p. D. 


586 


626 


77 B. D. 


1,415 


1,462 


57 G. D. 


856 


743 


77 G. D. 


1,371 


1,347 


57 P. D. 


1,460 


1,577 


78 G. D. 


959 


810 


58 B. D. 


868 


758 


78 P. D. 


672 


735 


58 P. D. 


740 


749 


79 B. D. 


1,041 


903 



Whatever may be said of a showing of this kind in 
the report of the Superintendent of Schools to the Board 
it is submitted that the general summary exhibited and 
the nineteen solid pages of detailed 
statistics such as above referred to 
are not sufficient information to en- 
lighten the officer or to satisfy the 
inquiry of a taxpayer as to the edu- 
cational and administrative public 
service rendered bv the Department of Education of the 



Defects in 

Report of 

Educational 

Service Rendered 



34 MR. CLEVELAND S REPORT 

City of New York. It is submitted that in the detailed 
statistical subjects treated, the content is not sufficient, 
and further, that the form of presenting these statistics 
is not such as to be readily understood and grasped. In 
other words, that the report in so far as it attempts to 
represent service rendered is deficient in content as well 
as to form of presentation. 

The objection is often urged that the benefits of de- 
structive criticism are lost by reason of the fact that no 
accompanying suggestion is made for improvement. In 
this relation, however, it is to be remembered that con- 
structive criticism and suggestion should flow from a 
more exact knowledge of records and of conditions pres- 
ent than may be had from the report itself, which is made 
the subject of the foregoing stric- 
tures. But certain general topics of 
interest may be pointed out from a 
knowledge of the law governing 
the organization of schools and from 
a general understanding of the na- 
ture of the service rendered. By 
provision of charter (Sec. 1069), power is expressly con- 
ferred on the Board of Education to establish and con- 
duct the following classes of instruction : 

(i) High Schools and Training Schools for Teach- 
ers. 

(2) Elementary Schools (in addition to regular 
grade schools), 
(i) Kindergartens. 

(2) Manual Training Schools. 

(3) Trade Schools. 

(4) Truant Schools. 

(5) Vacation Schools. 



Subjects for 

Report on 

*' Educational' 

Service 

Found in the Law 



MR. CLEVELAND S REPORT 35 

(6) Evening Schools. 

(7) Special Classes. 

(8) Free Lectures. 

It appears from the financial and other sections of 
the report of the Board, and from the report of the Super- 
intendent of Schools, that these several classes have been 
established and are being conducted. In addition to the 
above enumerated classes of instruction, the law (Char- 
ter, Sec. 1 1 52) has also recognized certain private schools 
as a part of the educational system of New York. It is 
further to be noted that still another class, viz., instruc- 
tion conducted in w^hat are known as recreation centers, 
is being given. Without attempting to prescribe forms 
or schedules, it may be consistently urged that the pub- 
lic, as well as responsible officers and agents, would be 
interested in having well-digested information presented 
(in statistical summary and in subsidiary schedules and 
exhibits) showing the service which is being performed 
in the several classes and departments of instruction and 
that this information be reduced to such a basis that com- 
parison may be instituted for the purpose of determining 
the relative educational efficiency of each. 

Still another branch of inquiry as to service rendered 
is found in the general administration of the Department, 
at the head of which is the Board of 
Education itself. To give concise- 
ness to the suggestion, the textual 
treatment of this branch of depart- 
mental activity might be preceded 
by a tabular statistical summary of 
the main facts and conclusions reached. Without claim- 
ing for the form conformity to the exact need, schedule 
C is suggested for the purpose of illustrating the charac- 
ter of exhibit referred to (page 25, first paragraph). 



Subjects 

for Report on 

Administrative 

Service 



3^ 



MR. CLEVELAND S REPORT 



EXHIBIT €• 

STATISTICS OF SCHOOL OPERATION- 
ADMINISTRATION. 



-GENERAL 



Year 



1897 1898 1899 1900 1901 1902 1903 



Board of Education: 

Members of the Board. 

Subordinate Officers of the Board, Male. . . 

Female.. 

Clerks and Stenographers, Male 

Female 

Office Attendants, Male 

Female 

Janitors and Caretakers, Male 

Female 

Total Num. Empl. in the Gen. Offices, Male 

Female 

Total 

Department of Supplies: 

Officers and Assistants, Male 

Female 

Stock Clerks, etc., Male 

Female 

Caretakers, Male 

Female 

Total in Dept. of Supplies, Male 

Female 

Total 

Superintendence of Buildings: 

Superintendent and Assistants, Male 

Female. . . 

Clerks and Stenographers, Male 

Female 

Janitors, Male 

Female 

Caretakers, Male 

Female 

Carpenters, Electricians & Skilled Men. . . . 

Other Laborers 

Total under Super, of Buildings Male .... 

Fem^ale. . 

Total 

Total Employed in Gen. Admin., Male 

Female. . . , 
Total 



MR. CLEVELAND S REPORT 37 

In the literary presentation of subjects of " service/' 
all of these several relations indicated might be illumi- 
nated and enlarged upon by subsidiary schedules and 
such exhibits as might be necessary to give public con- 
fidence in the result obtained or to furnish the detailed 
information required as a basis for administrative dis- 
cretion and critical judgment. 

Content of the Report of the Board of Education Pertain- 
ing to Physical Equipment Provided for School Purposes 

The only part of the report of the Board of Educa- 
tion which deals wath school equipment is found in the 
reports of subordinate officers and in the schedules of 
sites and buildings. Of these no digest is made and no 
co-ordination is attempted by the Board. In the report 
of the Superintendent of School 
Buildings is found much of interest- 
ing data; this, however, is ill-di- 
gested and has no summary which 
will catch the eye and quickly con- 
vey intelligence as to the physical aspects of the educa- 
tional plant. In another section a report is found giving 
a list of school sites which have not been improved. But 
the best digest that can be made from the data here given 
leaves much lacking that is necessary to a proper under- 
standing of equipment and leaves the reader without any 
information from which judgment may be made as to the 
fidelity of official custodians of property intended for pub- 
lic use. Neither is there any information which will 
admit of a conclusion with reference to adequacy of 
equipment and comparison with equipment needs. 

As before suggested, there are two distinct purposes 
pertaining to education for which the property of the 
city under control of the Board is used. These purposes 



Defects 

in Report as to 

Equipment 



General Subjects 

of Interest 

With. Reference to 

Equipment 



:^S MR. Cleveland's report 

may be described as: (i) General Administration; (2) 
Superintendence and Instruction. There are, moreover, 
at least three distinct classes of physical property to be 
accounted for, viz. : (i) Land for sites and playgrounds; 
(2) buildings and permanent improvements; and (3) 
furniture, apparatus, etc. If, therefore, an attempt is 
made to represent the several classes 
of property used for the several pur- 
poses suggested, it would be neces- 
sary to make a showing, statistically 
or otherv/ise, of the lands, buildings, 
and properties employed for admin- 
istration purposes ; and of the lands, buildings and prop- 
erties employed for superintendence and instruction. In 
representing further the properties employed for superin- 
tendence and instruction still other sub-classifications 
might be made which would show the properties and 
equipment used by the supervising staff and those in use 
by teachers and pupils. Some such representation might 
also be made with respect to prospective buildings, or 
those in the process of erection or for the erection of 
which some definite provision has been made (as that 
contained in the published report). By way of still fur- 
ther illuminating the textual discussion, the properties 
and equipment used for purposes of instruction might be 
classified according to the character of the several kinds 
of school using them. 

A classified statement of equipment such as that in- 
dicated, however, cannot be made of highest administra- 
tive use, and will not give to the public the best informa- 
tion, unless the general statistics are reduced to units of 
comparison. Among numerous units of comparison 
might be mentioned floor space occupied per student; 
cubic yards of air space of rooms occupied per student; 



MR. CLEVELAND S REPORT 39 

text-books and supplies furnished per student; etc., ar- 
ranged according to schools and classes of schools. 

Would not such facts be of distinct administrative ad- 
vantage in judging physical conditions pertaining to 
health, comparative cost of heating, lighting, caretaking, 
repairs and replacements, etc.? The establishment of 
units of comparison would also be necessary to a popular 
estimate of official ability in administrative and official 
custodianship and fidelity with reference to text-books, 
supplies, etc. To illuminate a discussion of properties 
and equipment an exhibit might be made of sites owned 
and sites leased, building sites im- 
proved and unimproved, of tem- 
porary buildings compared with per- 
manent buildings, air space con- 
tained in each class per student, etc., 
etc. The floor and air space occupied for administrative 
and supervising purposes as compared with the space 
occupied for teaching purposes might also be brought 
into comparison. Various summaries and exhibits might 
be suggested to throw light on the problem of relation of 
physical equipment to service rendered, and also to fur- 
nish a basis for judgment with respect to administrative 
economy and use of property. The suggestion here as 
before is, not that the particular subjects above men- 
tioned should be taken for illumination in reports, but, 
first, that whatever data might be considered of impor- 
tance, the Board is in a position to obtain the same at 
small expense, and, secondly, that it has a duty to report 
them to the chief executive officer of the city and through 
him to the public. 



Shotili Establish 

Units of 

Comparison 



Defects in 
Financial Report 



40 MR. CLEVELAND S REPORT 

Content of the Report as to Financial Operation and 
Financial Results 

Among the most important divisions in a report of 
any department of municipal government is that which 
reflects financial relations and results. It is these rela- 
tions that are first brought home to the taxpayer and to 
the municipal corporation at large. It is the financial 
side of operation which causes the citizen to ask concern- 
ing relations of cost to service rendered and economy of 
administration. It is financial inter- 
est, also, which institutes inquiry as 
to proprietorship and as to the fidel- 
ity of officers and agents in the ad- 
ministration of public properties and in the creation of 
corporate liabilities. A report which attempts to reflect 
these results, therefore, should collect the financial data 
of administration around three principal categories, viz. : 
(j) Categories of economy of administration; (2) cate- 
gories of corporate proprietorship ; and (3) categories of 
fidelity of officers and agents. Turning again to the re- 
port of the Department of Education for these results we 
find it deficient in content as well as difficult to under- 
stand. From the report under review, little or no infor- 
mation can be obtained as to relations of administrative 
economy. The report reflects no basis for comparison of 
administrative cost among the several departments or 
among the several classes of institutions and departments 
of instruction. As a matter of expense, it may be proper 
to ask, What are the expenses incurred for instruction? 
What are the expenses incurred for general administra- 
tion? What are the miscellaneous general expenses? 
And in making a showing of the expenses incurred for 
instruction it would be proper to inquire, What are the 



Absence of 
Comparative 

Tables 

of Cost 



MR. CLEVELAND S REPORT 4 1 

expenses of instruction within the several classes of 
schools and departments? 

Inquiries of this kind are necessary, not only for the 
purpose of instituting a comparison of expenses with 
revenue and appropriations, but also that the experience 
of one year may be aligned with the experience of an- 
other year. As a further test for administrative economy, 
a unit of cost per pupil may be established to get at the 
relative expense of instruction within the several groups 
or departments. In making inquiry 
as to the expenses of general admin- 
istration, it is proper to know what 
is the relative cost of maintaining 
the Board itself, and of the general 
administration of the Departments 
of Supplies, of Building Superintendents, of janitor ser- 
vice, etc. So, too, in making inquiry as to miscellaneous 
or general expenses, it may be of advantage to know the 
cost of heating and lightning per cubic unit; of caretak- 
ing per square unit, etc., etc. In the exhibit made of the 
amount of fuel used, while the number of tons and pounds 
used in each building and the total cost are reported, there 
is no statement showing the prices per ton — the only in- 
telligible key to a financial statement of a fuel account. 
Furthermore, the statements made in the report of jani- 
tor service, while long and given in detail as to the 
amounts paid to each person, contain no showing as 
to whether this amount is for salary or for some other 
purpose. Judging from the amount paid to each, in 
some instances running as high as $2,000 or $4,000, it is 
to be assumed that these in part are statements of moneys 
distributed through the person named. Classification is 
desirable that will not only show the several important 
items of cost, absolute and comparative, in total and by 



Statements 

of Revenues 

Defective 



42 MR. CLEVELAND S REPORT 

unit, but will also exhibit such relations as sinking fund 
requirements, and other current charges for which rev- 
enue contribution should be made. 

Another subject for inquiry that comes properly 
within the term " economy " is to be found in an account 
and final showing of revenues provided for the purpose of 
meeting costs of administration, etc. As to this, the report 
made is inadequate. Section 226 of the charter provides 
for departmental estimates for the ensuing year. It fur- 
ther provides (Sec. 1064, subsequently amended) for a 
tax the minimum amount of which shall not be less than 
three mills. Another provision is that the departmental 
estimate shall go before the Board 
of Estimate and Apportionment, 
where the final budget shall be de- 
termined. None of these financial 
relations is shown in the published 
report. The constitution, the statutes of the State of 
New York, and the charter further provide for income 
to the schools of the city for the '' common school fund,'' 
the '' literature fund,'' the " United States Government 
deposit," etc., and other funds, and yet no representation 
is made in the published report as to these. The charter 
provides (Sec. 1066) for the sale of supplies not needed 
and not to be used, and for the application of the money 
so received for current use to the special fund of the 
borough in which the supplies are sold. The only repre- 
sentation of revenues accruing to the schools is under 
the term and title '' appropriations " — which should not 
be regarded as coterminous with '' revenues." 

All expenses of the Board must be paid by warrant, 
and this warrant must be reduced to controlling record; 
therefore, the records and report of the Board of Educa- 
tion and the City Comptroller should be in agreement. 



Out of Harmony 

with Statements 

of Comptf oiler 



MR. CLEVELAND S REPORT 43 

P>om an examination of the two reports, it will be found 
that in the general financial statement for the year end- 
ing December 31, 1902, there is 
scarcely an item of financial sum- 
mary in agreement. Nor are the 
general balances the same. Only 
four items of the general summary 
of the '' special school fund/' for example, are in accord, 
whereas fifteen of them are out of accord. The balance 
of appropriations remaining unexpended as represented 
by the Board of Education is $380,109.49, while accord- 
ing to the published report of the Comptroller for the 
same date the balance is $1,531,947.78. 

Without attempting to do more than illustrate the 
character of showing that might be made in a final sum- 
mary exhibiting relations of administrative economy, and 
not even attempting to bring the sub-titles into harmony 
with the existing institution, the following suggestion is 
offered : 



44 



MR. CLEVELAND S REPORT 



EXHIBIT D* 
COMPARATIVE FINANCIAL STATISTICS. 
STATISTICS SHOWING RELATIONS OF ECONOMY - 
EXPENSES INCURRED. 





Year 




1897 


1898 


1899 


1900 


1901 


1902 


1903 


Expenses Incurred for Superintendence 
AND Instruction: 

Salaries of City Supt., Asso. City Supts., 
Dist. Supts., etc 
















Salaries of Teaching Staff : 
Day Schools: 

Training Schools 




High Schools 




Elementary Day Schools 




Evening Schools . . 




Vacation Schools and Recreation Centers , 
Cost of Lectures etc . . 




Total Cost of Instruction 




Expenses Incurred for General Adminis- 
tration: 
Expenses of Bd. of Ed. and General Admin. 
Officers and Offices 




Salaries and Admin, of Dept. of Supplies.. . . 
Building Superintendence: 

Supt. of Bldgs. and Gen. Office Exp 

Janitors . 




Caretakers 




Miscellaneous . . 




Tota^ General Administration 




Miscellaneous General Expenses: 

School Supplies Used 




Fuel and Light . .... 




Maintenance and Repairs: 

Buildings and Grounds . 




Furniture and Fixtures 




School Books 




Apparatus 




Other Miscellaneous 




Total Miscellaneous General Expenses 

Total Expenses Incurred during Fiscal-Year, . . 





MR. CLEVELAND S REPORT 



45 



IL 



EXHIBIT D. 

COMPARATIVE FINANCIAL STATISTICS. 
STATISTICS SHOWING RELATIONS OF ECONOMY- 
REVENUES ACCRUED* 





Year 




1897 


i8q8 


1899 


1900 


1901 


1902 


1903 


Dept. Estimates for the Ensuing Year, §226.. . . 
Property Basis for Apportionment and Appro- 
priation for Schools, §1064 
















Min. Amt. of School Aporops. under the Law, 
§226 f 




Estimates of Board of Estimates and 
Apportionment, §226. 
General Fund 




Special Fund 




Total 




Revenue from Taxation and Appropria- 
ATiON BY Board of Aldermen, §226. 
General Fund 




Special Fund. . . . 




Total 




Amount Accruing from the State and 
Other Funds: 

Com. School Fd. Cons. IX, §3 and Statistics.. 

Liter. Fd. Cons. IX, §3 and Statistics 

U. S. Gov. Deposit, IX, §3 and Statistics.. . . 
OtherRevenues Accruing During the Year 

Sale of Supplies for Benefit of Sp. Fd. , § 1066. 

Miscellaneous 




Total Rev. Accruing for Fiscal Year 

Revenue Surplus over Expenses Incurred .... 

Amount of Appropriations Lapsing at the End 

of Year 




Amount of Revenue Surplus Remaining for 
School Purposes 




Deficit (if the Exp. exceed the Revenues) 





46 



MR. CLEVELAND S REPORT 



nL STATISTICS SHOWING RELATIONS OF ECONOMY- 
COMPARISON OF SERVICE RENDERED TO COST. 



Year 



1897 I 



1899 1900 1901 1902 1903 



Average Cost of General Administration 
PER Pupil per Year : 

Bd. of Education and Gen. Officers 

Administration of Dept. of Supplies 

Building Super, and Care-taking 

Average of Total 

Miscellaneous General Expense Average 
PER Pupil per Year : 

School Supplies 

Fuel and Light 

Average Total General Expense 

Maintenance and Repairs, Including 
Depreciation: 

Buildings and Grounds 

Furniture and Fixtures. .^ 

School Books and Libraries 

Apparatus 

Average Cost of Instruction per Pupil 
PER Year: 

General Superintendence 

High Schools and Training Schools 

Evening Schools 

Vacation Schools 

Elementary Day Schools: 

Grade 

Manual Training 

Nautical 

Truant 

Average Total Elementary Schools 

Average Cost of Lecture p. Pupil p. Hour. . 

Aver. Cost of Play Gr. p. Pupil p. Year. . . , 



No Additional 

Cost if Books are 

Kept to Give 

Results Wanted 



MR. CLEVELAND S REPORT 47 

In offering suggestions as to schedules for final sum- 
maries of relations of economy, the writer is aware of the 
fact that no definite formulation could be made for statis- 
tical representation of results except at a very large cost 
to the Department, unless the ac- 
counts of the Departm.ent be kept 
in such a way that the footings of 
controlling items might be drawn 
from the books themselves without 
recasting and without statistical re- 
search. While from the character of the report made it 
may be inferred that the several categories of informa- 
tion suggested might not be readily answered from the 
books, the conclusion is ventured without fear of con- 
troversy that a report containing a statistical statement 
having reference to the relations of economy here indi- 
cated is necessary as a means of enlightening the public 
and giving to the administration a basis for more intelli- 
gent control. 

In the report of the Board of Education little or no 
attempt is made to give any data with reference to finan- 
cial relations of proprietorship. In justification of this, 
the fact may be urged that the Board is simply an ad- 
ministrative trustee, while under the charter (Sec. 1055) 
the proprietorship of school proper- 
ties is in the City of New York. On 
the other hand, the Board under the 
same statute, being made trustee for 
these properties and being the cus- 
todian by whom the properties are held, is in duty bound 
to render to the City of New York, the cesUii qui trusty a 
report of its trusteeship. The published document under 
review being made for the purpose of representing the 
Board in all of its relations, proprietary assets and pro- 



No Statement 

of Assets and 

Liabilities 



48 MR. Cleveland's report 

prietary liabilities of the city on account of its schools 
might properly be exhibited in its financial statements. 
Without this, many important school relations may not 
be understood. Even if such a report were exhibited by 
the Comptroller of the City of New York, still it would 
be proper for the Departm.ent to include as a matter of 
completeness a showing of assets and liabilities. Still 
more imperative is such a demand when no well-digested 
and classified statement is found in other reports. 

The general administrative needs for the keeping of 
asset and liability accounts are two: (i) That the data 
may be at hand for determining whether adequate allow- 
ances are being made for expenses to keep the properties 
in repair and to maintain the educational plant, thereby 
protecting the city against future expenditure for past 
use, and (2) as a means of recording the fidelity of agents 
into whose hands funds and proper- 
ties are placed for use and safekeep- 
ing. Other incidental relations may 
be shown. For the purposes of the 
Board, the City Chamberlain may 
be considered as a fiscal trustee. For the purpose of ob- 
taining the revenue necessary to carry on schools the Board 
of Estimate and Apportionment and the Board of 
Aldermen may be considered as agents who have a duty 
to perform; guide to judgment as to whether they have 
complied with the law and exercised proper discretion 
can come only from a complete financial statement. All 
funds belonging to the schools and which are to be admin- 
istered by the Board of Education are to be kept by 
the City Chamberlain and disbursed by him. The report 
contains no such information as will show whether 
either the City Chamberlain or the Board have properly 
performed the duties imposed by law in making provision 



Uses to be Made 

of Such 

Statements 



MR. CLEVELAND S REPORT 49 

for school revenues and dispensing school funds. Again, 
for the purpose of obtaining the funds provided under 
the revenue measures above referred to, the several de- 
partments of government having charge of the collection 
of taxes, the collection of funds apportioned to the city 
by the State, etc., stand in fiduciary relation. No show- 
ing is made as to these. Quite an extended showing is 
made of the work of the Department of Supplies, but no 
classified or systematized result is given which will 
bring these into comparative relation, or which will ex- 
hibit to the public official fidelity. 

Again attention is called to the fact that this com- 
munication is based on an examination of the report of 
the Board of Education, and of the Law under which the 
schools are operated; it does not assume any knowledge 
either of accounts kept or of peculiar conditions existing, 
all of which must be brought to view before arriving at 
a final result. The criticisms and suggestions made pro- 
ceed, rather, from a consideration of the purpose of a re- 
port in a public corporation of such size as to make a pub- 
lic statement necessary, and of the duties of ofiicers to 
give an account of their stewardship. Nor is it to be 
said that the officer is exonerated from a charge of non- 
feasance because the public have not made their demands 
felt in such a way as to compel attention. A statement 
that a stockholder does not read a report made is no rea- 
son to be urged by an officer for not making the report. 
But leaving the public demand for 



Concltision 



information entirely out of the ques- 
tion, the duty of an officer to himself 
and to all other officers and administrative agents to lay 
before each other such a digest of activities and results 
attained within his own branch for the exercise of the 
best discretion in directing the aflfairs of a great corpora- 



50 MR. CLEVELAND S REPORT 

tion is sufficient reason for an intelligent and comprehen- 
sive report. At the present time much discussion is cur- 
rent as to the adequacy of appropriations made to main- 
tain the schools; but how can the Board of Education 
complain at a reduction in their estimates of financial 
needs if no report is made which would lay the basis for 
intelligent opinion as to service and service requirements? 
For a proper consideration of any aspect of administra- 
tion, a report which embodies an intelligent statement of 
all the essential facts is necessary. And in making such 
a report the criterion as to form and content must be the 
ends for which the branch of the service exists. A re- 
port which conforms to this standard, which shows the 
manner in which the administrative purpose is complied 
with, will answer both the public and the corporate needs. 
This is not a purely academic question. In municipal 
government the demand of the time is for increased effi- 
ciency. The impotence of the past has been largely due 
to lack of well-classified and well-digested information. 
Given this in the form of published reports, and the 
largest and most complicated municipal corporation may 
lead in measures of administrative reform. 
Respectfully submitted, 

FREDERICK A. CLEVELAND. 
30 Broad Street, New York. 
March i, 1904. 



THE STATE UNIVERSITY OF IOWA 

NEW YORK ASSOCIATION FOR IMPROVING 
THE CONDITION OF THE POOR 

105 East 22d Slreet, Ne<w York City. 

Gentlemen : — 

In reply to your request for an opinion, as to the sta- 
tistical technique of the reports of the Board of Educa- 
tion of the City of New York for the year 1902 and the 
Superintendent of Schools, I would submit the following: 

To properly consider the statistical value of a report 
it is necessary to know the conditions under which the 
statistician works. It is customary either to give him 
carte blanche to prepare a comprehensive view of the 
subject, or to limit his inquiry to certain definite lines the 
writer of the report intends to follow. In this instance, 
however, not being advised as to these facts it is neces- 
sary to base my estimate upon the tables actually pre- 
sented. It is but fair, however, to the statistician to state 
as will be apparent to the reader, that he was definitely 
limited in the scope of his inquiry, and the meagre in- 
formation found in the tables presented was studied 
rather than accidental. This is assumed, inasmuch as 
the Superintendent has not seen fit to discuss many of 
the problems of vital interest to the schools of the city; 
and in a similar manner the Board of Education has made 
no attempt to present expenditures in detail, or give data 
in such a way as to enable the reader to ascertain definite 
information as to any line of work carried on by the 
public schools. 



52 MR. Patterson's report 

Coming then to the actual work as presented in the 
volumes above mentioned, I would say that, from a sta- 
tistical standpoint a report should be judged : 

First, by harmony in the tables presented ; by this it 
is understood that portions of the report relating to com- 
parable subjects should be arranged to permit compari- 
son. For example, if average attendance or average reg- 
istry is made the basis of the regular report it should be 
the basis in the report of the summer work. 

Secondly, by the nature of the tables presented. 

(a) The table should be a unit — should set forth 
a single set of facts closely related — no extraneous mat- 
ter should be incorporated. 

(b) It should permit easy judgment — some method 
should be used to enable the reader to obtain the infor- 
mation intended; this may be done by the use of the 
medium, the mean, the average or by simple percentage. 
The latter is perhaps to be preferred, as it is readily com- 
prehended by the average reader. Naturally totals should 
in all cases be given, as they aid judgment of the one 
scrutinizing the report. 

(c) It should be mathematically correct. Naturally 
proofreading errors are not to be considered under this 
head ; with all due care such errors will almost invariably 
occur. The percents, however, should foot to one hun- 
dred and numbers added should be like numbers. It 
should be understood that the sum of several averages 
will not produce a true average of the given numbers un- 
less the facts be the same throughout. 

Using these principles as a basis the tables in the re- 
port of the Superintendent of Schools cannot be said to 
be harmonious. Data given in the work of the schools 
during the year do not appear in the report of the vaca- 
tion and night schools, although the work pursued has 



MR. PATTERSON S REPORT 53 

many points in common. Even comparative enrollment 
is left in doubt by the use of terms "net enrollment" and 
'' average register " as compared with " total enrollment " 
and " total register." 

The chief criticism to be made, however, is that the 
tables do not permit of easy judgment. A reader is in all 
cases obliged to study to determine the point the statisti- 
cian is attempting to make, and not only to study, but he 
is obliged further to make several computations to ascer- 
tain the facts for himself. Almost no use has been made 
of percentages, totals are often omitted, and in at least one 
case where given are misleading. This case is on pa^es 
28-9, relative to school sittings. A total of the sittings in 
buildings opened in certain portions of the year and 
buildings " contracted for but not commenced " is given. 
The idea is that 31,630 elementary school sittings are 
either made or being arranged for within a given period. 
It would be proper to go further, if thus far, and include 
the probable sittings that would probably be upon sites 
under condemnation at the present time, or probably be 
condemned in the near future. A table on page 33 com- 
pares net enrollment and population, and discovers that 
15.4 per cent, of the population are in the schools, a fi^s'ure 
that means absolutelv nothing, inasmuch as the age class 
is not considered, without which no conclusion as to the 
efficiency of the schools in reaching the pupils can be 
drawn or an idea of the magnitude of their work be ob- 
tained. The higher the age class the lower the percent- 
age, and vice versa. Yet on page 133 a table is given in 
which the number of pupils of school age is stated. If 
the percentage were based on this number rather than on 
the total population the work of the schools would be 
better shown. 

A good illustration of failure to use methods that 



54 MR. PATTERSON S REPORT 

Will make for the knowledge of the reader is shown on 
page 39. No column is given for the totals and the per 
cents., while stated in the text, are not placed before the 
eye. If the table for the several kinds of classes and the 
percentages were given in the same manner that they are 
given for the several classes of schools there mentioned, 
a valuable point would have been made clear. Likewise 
as to sex of pupils in the table on the lower half of the 
page. No cross percentages have been placed and no 
effort has been made to show the proportion of boys and 
girls in attendance. This is one of the questions fre- 
quently asked, and but little additional work would have 
been required to furnish the necessary information. The 
above will indicate the principal criticism to be made. 
Other illustrations are not wanting, but it is unnecessary 
to enumerate further. 

Summary tables are lacking. The number of pupils 
in attendance in the boroughs in the various schools may 
be found by searching through the individual tables, but 
no summary is made from which one may get a compara- 
tive statement for a series of years, or even for the several 
boroughs for the period covered by the report. For ex- 
ample, the report of the Superintendent in charge of rec- 
reation centers, vacation schools and playgrounds, gives 
a lengthy statement of the total enrollment and average 
attendance of the schools in the several boroughs, but no 
totals are found at the end of the columns, and in no place 
13 the work summarized. 

Turning to the report of the Board, similar criticisms 
may be made. The tables given are lengthy enumera- 
tions of items for which expenditures were made, but at 
no point is there a table that will permit an easy compari- 
son of the several boroughs. A reader in examining the 
report can only by excessive labor determine whether 



MR. PATTERSON S REPORT 55 

expenditures are increasing in a certain line or diminish- 
ing. It is entirely feasible to make a comparative state- 
ment that would show exactly the cost of the several 
items in the several boroughs for a series of years, but 
instead we find a great enumeration of items meaningless 
to the average reader and almost fruitless to the earnest 
searcher after truth. 

Respectfully submitted, 

W. R. PATTERSON. 
Iowa City, la., 

September 29, 1904. 



EPOCHS OF ADVANCE 

J 843 Organization 

J 845 Initiation of improved hotising studies 

1848 Distribution, among capitalist and builders, of plans for model tenements 

J 85 J Projection N# Y# Juvenile Asylum, and founding of DeMilt Dispensary 

J 852 Founding of the Northwestern Dispensary 

A public washing and bathing establishment, built at a cost of $42,000 

1855 Workingmen^s Home, built at a cost of $90,000 

J 856 A social, moral, statistical census of certain sections of New York City 

J 857 Special investigations regarding cellar residences, defective dwellings, 

sewerage and filthy streets 

1860 Popular public lectures on hygiene and sanitation 

1862 Founding of the Society for the Relief of the Ruptured and Crippled 

1864 Legislation preventing adulteration and traffic in impure milk 

1865 Special sanitary measures to counteract the cholera epidemic 

iS66 Absorption into homes of 10,000 soldiers and sailors disabled in the war 
1869 Projection of improvements in city market, wharves, and piers, which 
menaced public health by defective sewerage 

1878 A Committee of Public Hygiene co-operating with the Board of Health 

in tenement-house inspection 

1879 Employment of paid visitors instead of volunteers 

1880 Transfer of the central office from Bible House to 79 Fourth Avenue, 

where the Charity Organization Society was given its first home 
1886 Opening of a Sewing Bureau for employment of women at their homes 

1890 Ocean parties to West Coney Island 

1891 People's Baths, 9 Centre Market Place, built at a cost of $28,000 
Removal of headquarters to United Charities Building 

1894 Vacation Schools started. Six in 1895 and 1896, ten in 1897 

1895 Cultivation of vacant city lots by the unemployed 
Cooper Union Labor Bureau established 

1896 Formation of the Improved Housing Council, which organized The 

City and Suburban Homes Company (capitalized at $1,000,000) 

1897 Hartley House Social Settlement* estabHshed at 409-411-413 W. 46th St. 

1898 Work for motherless infants begun with S* C. A* A. 

1902 Appropriation by the city of funds to build three public baths in the 

Borough of Manhattan through the efforts of this Association 

1903 Longer Fresh Air Season 

1904 Opening People^s Baths, Milbank Memorial, 325-327 East 38th Street 

Seaside Tent Camp — First American experiment in salt air treatment of 
little children suffering from Non-Pulmonary forms of Tuberculosis 
In tents June 6 to October 31, continued for winter of J904-1905 in Service 
Building at Sea Breeze 

1905 Communication to Board of Education relative to method of correlating 
educational and administrative statistics. To be followed by illustrated 
compendium on bathing facilities in New York City 



PRESENT ACTIVITIES OF THE 
ASSOCIATIOI 



GENERAL ADMINISTRATION 



LIBRARY OF CONGRESS 



William H. Allen, General Azer 

^0 029 932 505 2 

Address: TELEPHGr.i 

105 EAST 22d STREET 348-349 GRAMEi 

9 A. M.— 12 P. M. 



DEPARTMENT OF RELIEF 

Mrs. H, Ingram, Superintendent 
JOINT APPLICATION BUREAU 

Frank D» Witherbee, Superintendent 
JOINT COMMITTEE ON CARE OF MOTHERLESS INFANTS 




SEA BREEZE 



Virginia M. Walker, Superintendent 

Open during the summer of I904 from May 17th to 
September 30th : 3*578 convalescent mothers, babies 
and children entertained for ten days each. Day 
Excursions given to 18,300. 



EXPERIMENTAL SEASIDE TENT CAMP 

For the treatment of Children suiFering from Tuberculosis 
of the Bones and Glands. Operated in Tents from 
June 6th to October 31st, 1904. Continued in 
the service building at Sea Breeze from October 31st 
for the winter of 1905. 

Alice Page Thomson, Superintendent 

29th ST., and SURF AVE.. WEST GONEY ISLAJCD 

TELEPHONE: 188 CONEY ISLAND 

PEOPLE^S BATHS— CENTRE MARKET 

Between BROOME and GRAND STREETS 
Richard E. Taylor, Jr., Superintendent 

PEOPLE^S BATHS— MILBANK MEMORIAL 

325-327 EAST 38th STREET 

Capacity 4,800 Daily Opened May 19th, 1904 

Richard E. Taylor, Superintendent 



